An analysis of the work done, whether provided for by legislation or by administrative practice, shows certain other facts. The number of the staff in any state is often variable, temporary or part time assistance is often used, and this is true where this work is not a part of the work of a state library or other wider organization. Furthermore, the cost in money is almost impossible to estimate accurately in many places, because of this co-operation with other work. In starting a new work this difficulty in answering the question of what it costs elsewhere must be faced. The best way to meet it seems to be to make the comparison on the basis of the work wanted, definitely planning what is to be done, and asking for a lump sum to cover its estimated cost.

The drafting proposition is a most important element. Some three or four states already have official bill-drafting agencies, other than legislative reference departments, and a number of others definitely depend upon the attorney-general's office for this work. In some states there is opposition to putting this in the hands of a non-legislative agency, and in others the libraries, while ready to handle a specialized reference work, are not ready to undertake drafting. Obviously this work requires highly specialized training, and equally, I believe, it will be agreed that this service should be rendered and that it must be in the closest co-operation with the reference work. There is no doubt in my own mind that the best condition is that of a single agency to perform this dual work, where the establishment of such is possible, and the usual organization seems to include both the expert draftsmen and the special clerical and stenographic assistance.

This service in the primary formulation of bills must inevitably lead to a similar assistance as bills progress toward final enactment. This care as to form through the processes of amendment and revision will ultimately be complete if the enacted statute law is what it should be "to stand the test."

This leads me to certain suggestions of other fields of service in the legislative process which should all tend to better the whole legislative product. Of course, in much of this service the emphasis is placed upon form and make-up of the final product, the discretion as to subject matter resting elsewhere, but that discretionary judgment is to be based upon the most complete information it is possible to furnish. Most of these services are now performed by the libraries or other non-legislative agencies in some states, but of course not all, or indeed many, in any one state. They include editing, foot-noting, side-noting, indexing of session laws, and the preparation of tables of amendments, repeals and similar matter; the proper filing and care of original bills, journals, committee records, and similar matter, after the work of the session is completed; the editing and indexing of the printed journal; editorial work of various forms upon the legislative documents. These are all services needed by our states, useful to the legislative bodies, and only properly handled through some permanent agency. Is the state library that agency? I leave the question for your consideration, and suggest that some uncertainty at present as to just what may be most desirable is evident particularly in the new legislation in Vermont, Ohio, Indiana and California. It has already been brought out in prepared paper and in discussion at this conference that the state library should not be a central public library in its content or its method. It is rather possible to express the field of its activities as that of a collection of special libraries. Into that field would come quite naturally the varied services to the legislative branch of the government which have been suggested. As already stated some of them are now supplied in some states. What we shall ultimately work toward in our states is a complete organization of these allied branches of work, all of which focus about the work of the legislature. Some of these services are at once recognized as within the field of the library—about others there is a decided difference of opinion. But they all have many common elements, many points of contact. They are most effectively to be handled as a group. The tendency will surely be toward a concentration rather than a scattering of these parts of one general work. Plans for such a concentration, adapted to a particular set of conditions, to be sure, have already been put into concrete bill form in New York and the bill was before the legislature this year. The question presents many new features, but is not something to be answered perhaps in the distant future; it is rather, I believe, worthy of a very real consideration in the present.

The PRESIDENT: The second paper this morning, which follows very logically after the one which we have just heard, will be by Mr. DEMARCHUS C. BROWN, state librarian of Indiana, on

STATE-WIDE INFLUENCE OF THE STATE LIBRARY

The writer of this paper would be more than Protæan if he could say anything new on this topic. All our associations, at least the half dozen I belong to, meet so often that repetition is forced upon us. In the interim very few experiences or ideas worth recording come to us. Biennial or triennial sessions would lead to better results and save money.